Fish and Game

Division of Mines and Geology-Continued

ANALYSIS

Item 188

This request in the amount of $15,754 is made in anticipation of recovery of reimbursements of $21,810 from sale of publications of the State Geologic Map. The total cost of the program for pUblication and space rental will be $37,564.

The printing cost for each sheet of the map is $4,655 in the amount of 6,000 copies. During fiscal 1960-61 three sheets were published at a total of $13,965. In the current year, the division plans to publish five sheets at $23,275. For the budget year, the division intends to publish seven sheets at a total cost of $32,585. Since the basic map upon which the geologic data is printed comes by contract from the U. S. Army Map Service, publication of the finished geologic maps is dependent upon delivery of the stock. Delivery of this stock has been erratic in past years, a factor contributing greatly to the divi­sion's failure to realize estimated publication reimbursements.

In view of the fact that there appears to be no compelling need to produce any more publications, we recommend that production be lim­ited to five sheets. This will reduce printing costs by $9,310. Assuming a ratio of reimbursements to printing costs of $2,500 in reimbursements to each $4,655 expended for printing, a $5,000 reduction in reimburse­ments will result. The savings in printing costs less the reimbursements will result in a net budgetary reduction of $4,310.

DEPARTMENT OF FISH AND GAME ITEM 188 of the Budget Bill Budget page 483

FOR SUPPORT OF DEPARTMENT OF FISH AND GAME FROM THE FISH AND GAME PRESERVATION FUND Amount requested ______________________________________________ $9,316,759 State e=ployees' retiremenL_____________________________________ 553,202 State employees' health and welfare_______________________________ 59,220

Total _____________________________________________________ $9,929,181 Estimated to be expended in 1961-62 fiscal yeaL____________________ 9,993,483

Decrease (0.6 percent) __________________________________________ $64,30'2

TOTAL RECOMMENDED REDUCTION__________________________ None

ANALYS·IS

The budget requests an expenditure of $9,929,181 which represents a decrease of $64,302, or 0.6 percent, from the anticipated expenditures for fiscal year 1961-62. New positions are held to a net of 2.6 man-years of temporary help to aid in the salmon marking and recovering pro­gram.

GENERAL SUMMARY

The Department of Fish and Game is charged by the Constitution with the management of fish and game resources within the State. This includes creating and administering conservation programs designed to allow maximum crops consistent with scientific fish and game manage-

482

Item 188 Fish and Game

Department of Fish and Game-Continued

ment procedures. The Constitution further provides for division of the State into administrative districts as deemed appropriate in order to insure protection and proper enhancement of the resources.

The Department of Fish and Game and the Fish and Game Commis­sion are supported by the Fish and Game Preservation Fund which derives its revenues from sale of hunting and fishing licenses, court fines and forfeitures collected as a result of violations of the Fish and Game Code. One-half of all such revenue derived from fines and forfeitures is turned over to the county in which the violation occurred, where they are to be deposited to the county's fish and game propagation fund to be expended only for propagation and conservation of wildlife.

Administration

The Department of Fish and Game is organized on a line and staff basis. Each field component has its counterpart in the lleadquarters staff. The administration section performs executive and business man­agement functions for the department. This section shows an increase in estimated expenditures of $63,299 over the 1961-62 fiscal year, which is mostly accounted for by a $47,232 increase in salaries and wages. This increase is the result of an addition of 7.5 positions reflecting cen­tralization of the licensing function as directed by the Legislature dur­ing the 1961 Session. The 7.5 position increase is offset by a 10.1 posi­tion cumulative reduction in the various regional headquarters offices. Other increases in this section's budget result from biennial printing expenditures for game tags and fish tags and a slight increase in print­ing rates.

Staff Operations

An increase of approximately $45,000 occurs in wages and salaries of the staff operations section due to enlargement of the Delta Fish and Wildlife Protection Study. All positions in this project area are reim­bursed under contract from the Department of Water Resources. No other positions are added. Other facets of this section's budget reflect decreases, with a net decrease of $54,674 resulting from adjustments and economies within the department.

Conservation Education

This section has the responsibility to further conservation education through informational programs, many of which take the form of writ­ten materials distributed through numerous outlets. There are no changes in staffing in this section and various small economies have re­sulted in a net reduction of $537. At legislative direction in the 1961 Session, printing of sportsmen's services material was cut back to $38,595. There has been no increase in this item. Various pamphlets describing aspects of California fish and game species have been re~ moved from. the printing schedule; among them were certain identifi­cation and conservation £olders, some school classroom and youth mate­rials, general conservation materials and a limited number of anglers' and hunters' guides.

4Sa

Fish and Game Item 188

Department of Fish and Game-Continued

Marine Resources Operations

The Marine Resources branch is requesting $858,431, which is $2,785, or 0.3 percent, less than is anticipated will be expended during the 1961-62 fiscal year. Wages and salary merit adjustments of $12,904 are offset by reductions totaling approximately $15,700 in both operating expenses and equipment. The present level of service is expected to be maintained. This branch is primarily concerned with conducting re­search projects bearing directly on marine species along the Pacific Coast with a view to compiling statistics useful to the commercial fish­ing industry of California.

Regional Operations

The State is divided into five regions for purposes of administration and operation. Headquarters for each of the five regions are located at Redding, Sacramento, San Francisco, Fresno and Los Angeles, re­spectively. Regions I, II, and III reflect decreases of $27,726 (2.1 per­cent), $75,103 (6.6 percent), and $50,536 (4.4 percent), respectively.

Regions IV and V reflect increases of $39,842 (4.0 percent), and $5,201 (.03 percent). The overall five-region expenditure figure for the budget year is $6,431,008 against a 1961-62 expenditure in this same area of $6,539,330, which reflects a regional expenditure net decrease of $108,322, or 1.7 percent.

Fish and Game Preservation Fund

This fund, established by the Legislature at an early date, receives its revenues from the sale of licenses, permits and fish and game tags, plus court fines and some taxes upon the commercial fishing industry for special purposes. Revenues for the current year are estimated at $10,910,000. For the budget year, it is estimated that $11,040,000 will accrue to the fund.

At the. close of the current fiscal year, the Department of Fish and Game estimates an accumulated surplus of $4,957,565, with an accumu­lated surplus of $5,277,951 anticipated as of June 30, 1963. The net revenue from licenses, permits and tag sales is estimated to increase by $148,000 in the budget year while court fines and income from surplus money investments provide an estimated combined increase of $6,000, partially offsetting the $24,000 reduction in miscellaneous revenue. The total net revenue increase for the budget year is estimated at $130,000.

In a statement of fund condition for the Fish and Game Preservation Fund we note that the accumulated surpluses as of June 30 of the budget year have fluctuated over the past three years, with the esti­mated accumulated surpluses as of June 30, 1962, representing the low point in the three-year cycle. Accumulated surpluses for the three-year period are listed below:

1960-61 (actual)

$5,041,729

Estimated 1961-62

$4,957,565

Estimated 1962-63

$5,277,951

A contributing factor to the estimated increase to the accumulated surplus as of June 30, 1963, results from the removal of the major

484

Item 189 Fish and Game

Department of Fish and Game-Continued

portion of the claim of the Board of Control and the $130,000 net in­crease in license and tag sales. The resolution of the claim of the Board of Control reflects final disposition of the claim of the commercial fisher­men whose operation was terminated with the closing of the Sacramento River to such fishing by 1956 legislation. We recommend approval of this item as s~£bmitted.

Department 'of Fish and Game PROGRAMS IN CO.OPERATION WITH THE FEDERAL GOVERNMENT

ITEM 189 of the Budget Bill Budget page 497

FOR SUPPORT OF GAME MANAGEMENT AND FISHERIES MANAGE­MENT IN CO-OPERATION WITH THE FEDERAL GOVERNMENT FROM THE FISH AND GAME PRESERVATION FUND Amount requested _____________________________________________ _ State employees' retiremenL, ____________________________________ _ State employees' health and welfare ______________________________ _

Total ____________________________________________________ _ Estimated to be expended in 1961-62 fiscal year ___________________ _

Increase (8.5 percent) ~ _______________________________________ _

TOT A L RECO M MEN DE D RE DUCT ION _________________________ _

ANALYSIS

$295,515 12,438 2,022

$309,975 285,625

$24,350

None

These two programs, the Dingell-J ohnson Fisheries Management and the Pittman-Robertson Game Management Program, are co-operatively financed through joint federal and state funding. The federal govern­ment undertakes to provide 75 percent of the total project costs and the State provides 25 percent. Each of the two programs are discussed separately below.

PITTMAN·ROBERTSON GAME MANAGEMENT PROGRAM

The budget requests a total of $202,675, which is $3,200, or 1.6 per­cent, more than is anticipated will be expended during the 1961-62 fiscal year. This increase is directly attributable to a slight increase in federal funds available to the state. The federal government, under provisions of the Federal Aid in Wildlife Restoration Act, more com­monly known as the Pittman-Robertson Act, underwrites approximately 75 percent of program costs. The total of all co-operative game man­agement programs falling within the purview of this act for the budget year is $810,700, of which the federal government will provide $608,025, or 75 percent.

The Pittman-Robertson Act program is supported by the federal excise tax on sporting firearms and ammunition. Among other condi­tions established by the federal government is that of spending a por­tion of the total project funds on basic research.

Availability of the federal funds is partially dependent upon the returns of the excise taxes and the amount carried over from the pre­vious year. Previous year allocations may be carried for one additional year before reverting to the federal treasury. Sanction of this program is given in the Fish and Game Code.

485

Fish and Game Item 189

DINGELL-JOHNSON FISHERIES MANAG~MENT PROGRAM

The budget requests $107,300, which is $21,150, or 24.6 percent, more than is anticipated will be expended during the 1961-62 fiscal year. The total of nine projects currently in progress will employ a total of 48.8 positions. Of the nine projects, two are new in the budget year.

The Dingell-Johnson Act of 1950 was designed to furnish federal moneys on a 75 percent federal matching basis to the various states with a view toward study and restoration of declining marine re­sources. This federal money is derived from an excise tax levied on sport fishing gear.

The proposed budget year increase in the State's 25 percent share of the program results from the increased availability of federal money which in turn is influenced by greatly advanced sales of angling equip­ment during the past year.

Of the two new projects to be undertaken during the budget year, the first is the Southern California Marine Sport Fish Survey, con­ducted to provide data necessary for the management of certain south State marine sport fish species .. The White Sea Bass study will be con­tinued under this new program, accounting for approximately 25 per­cent of the program's time. In addition, the project officers will inter­view the marine sport fishing public to determine creel contents and conduct studies concerning collection of data relative to other impor­tant marine species life histories.

The second of the two new Ding-ell-Johnson cooperative projects is the Lake Tahoe Fisheries Study. This study is primarily designed to determine ways in which sport fishing in Lake Tahoe may be improved. The study will take several forms including a creel census to find the type and size of the take, planting of experimental species in the lake, study of the lake's tributaries to find the contribution of such tribu­taries to natural reproduction of present lake species, and miscellaneous life history studies of other lake species.

This particular program has been funded for the past two years from the Fish and Game Preservation Fund and is being- transferred to a cooperative federal project status due to its ideal approximation of the proj ect aims of the Dingell-J ohnson Act. Some relief of the regular Fish and Game support budget will also be experienced. The Lake Tahoe project will employ 6.2 positions and is budgeted at $58,000 for the budget year.

We recommend app1"oval of this item as st~bmitted.

486

Items 190-191

Department of Fish and Game PACIFIC MARINE FISHERIES COMMISSION

ITEM 190 of the Budget Bill

Fish and Game

Budget page 508

FOR SUPPORT OF PACIFIC MARINE FISHERIES COMMISSION FROM THE FISH AND GAME PRESERVATION FUND Amount requested_______________________________________________ $18,100 Estimated to be expended in 1961-62 fiscal year_____________________ 16,700

Increase (8.5 percent) __________________________________________ $1,400

TOTAL RECOMMENDED REDUCTION__________________________ None

ANALYSIS

The budget. requests $18,100 which is $1,400 more t.han is ant.icipated will be expended during t.he 1961-62 fiscal year.

The Pacific Marine Fisheries Commission, created in 1947 as a tri­stat.e research and regulat.ory body wit.h the responsibilit.y of co-ordi­nat.ing research activities of t.he t.hree states involved, funct.ions t.hrough a small st.aff locat.ed in Seattle. Washingt.on, Oregon and California are the three st.ates current.ly joined in t.he compact.. Alaska, Hawaii find Idaho have applied for ent.ry and t.heir future part.icipat.ion in the program is almost. assured. The Congress now has t.he matter under consideration and approval is expected in t.he spring of 1962.

Since each st.at.e's share of t.he Commission's budget is computed on t.he relative value of t.hat state's commercial take in certain speci­fied species, t.he addition of new member stat.es will have t.he effect. of reducing each st.ate's share, provided that t.he over-all budget. is kept. at or near present levels. Some additional research project. work and co-ordination will result with t.he addition of t.he three new states since new species of fish will come under considerat.ion, but t.he general level of the program can beexpect.ed to remain relatively const.ant..

There has been discussion during t.he present year concerning the expansion of t.he research program. We feel t.hat. any such expansion should only follow exhaustive study of the nature of the research projects to be included. At present., t.he Commission has no such com­prehensive research program out.lined.

We recommend approval of this item as b~~dgeted.

DEPARTMENT OF FISH AND GAME ITEM 191 of the Budget Bill Budget page 483

FOR PURCHASE OF REPLACEMENT TANKERS FROM THE FISH AND GAME PRESERVATION FUND Amount requested ______________________________________________ $60,000 Estimated to be expended in 1961-62 fiscal year_____________________ None

Increase _______________________________________ ~_______________ $60,000

TOTAL RECOMMENDED REDUCTION__________________________ None

ANALYSIS

This item requests $60,000 for replacement of t.wo fish t.ank t.rucks wit.h all appurtenances. The latter include refrigerat.ion and aeration equipment and specially designed t.anks and openings to provide for

487

Fish and Game Items 192-193

Department of Fish and Game-Continued

maximum safe transport of the fish from hatchery to pond while lower­ing the cost per fish.

These two trucks will replace two somewhat smaller vehicles cur­rently in use which will reach the maximum mileage rate this spring.

We feel obligated to point out, however, that this $60,000 should rightfully appear as a part of the regular support budget rather than as a separate item, at least for purposes of comparison. Other agencies, including this one, replace vehicles regularly without recourse to this device of a separate item. Using this method of listing, it is possible to reach a misleading conclusion concerning actual support costs to this department.

We recommend approval of this item as submitted.

Department of Fish and Game MARINE RESEARCH COMMITTEE

ITEM 192 of the Budget Bill Budget page 510

FOR S'UPPORT OF THE MARINE RESEARCH COMMITTEE FROM THE FISH AND GAME PRESERVATION FUND Amount requested ______________________________________________ $92,201 Estimated to be expended in 1961-62 fiscal year____________________ 92,201

Increase ___________ ~___________________________________________ ~one

·TOTAL RECOMMENDED REDUCTION__________________________ ~one

ANALYSIS

This request anticipates expenditures exactly paralleling those for the 1961-62 fiscal year. There are no changes in item amounts nor in the level of services to be offered.

The Marine Research Committee, created in 1947 to investigate and attempt to reverse the decline in the sardine industry, is supported trom a privilege tax of five cents per 100 pounds in the landings of certain species. The research projects undertaken by this organization are conducted by intra-California research institutions for the specific purpose of developing the commercial fisheries of the Pacific Ocean and increasing the benefits of marine products to the people of Cali­fornia.

We recommend approval of this item as submitted.

DEPARTMENT OF PARKS AND RECREATION ITEM 193 of the Budget Bill Budget page 512

FOR SUPPORT OF DEPARTMENT OF PARKS AND RECREATION FROM THE GENERAL FUND Amount requested ______________________________________________ $6,456,519 State employees' retirement______________________________________ 568,202 State employees' health and welfare_______________________________ 61,861

Total ______________________________________________________ $7,086,582 Estimated to be expended in 1961-62 fiscal year_____________________ 7,179,093

Decrease (1.3 percent) __________________________________________ $92,511

TOTAL RECOMMENDED REDUCTION___________________________ $60,424

488

Item 193 Parks and Recreation

Department of Parks and Recr,eation-Continued

Summary of Recommended Reductions

Delete one-half of staff, operating and equipment expenses, Division of Recreation_________________________________ $60,424 Transfer one-half of staff, operating and equipment expenses to Di­

vision of Beaches and Parks.

ANALYSIS

The old Department of Natural Resources, abolished pursuant to Chapter 2037, Statutes of 1961, was replaced in part by the newly created Department of Parks and Recreation containing the old Divi­sions of Beaches and Parks, Recreation and the General Fund portion of the Division of Small Craft Harbors.

'l'he budget for this department is a requested $6,456,519 which is $92,511, or 1.3 percent, less than is anticipated will be expended for a comparable level of service during the present fiscal year. Each of the three divisions noted' above are treated separately below.

DIVISION OF ADMINISTRATIVE SERVICES

The budget requests $718,858 which is $552,649, or 332.5 percent, more than is anticipated will be expended during that part of fiscal 1961"62 affected by the agency reorganization plan. An explanation of this apparent increase follows.

In October, 1961, the provisions of Chapter 2037, Statutes of 1961, caused the reorganization of the old Department of Natural Resources into the new Departments of Parks and Recreation and Conservation. As part of the reorganization, it was decided to establish a separate division of administrative services in each of the two new departments. The costs cited for the 1961-62 fiscal year represent only about one-half year and are incomplete because of lags in the transition from Depart­ment of Natural Resources status to the new agency status. Some reim­bursements are presently being applied to other areas which will accrue to this division in the budget year, and certain costs are not shown for the 1961-62 fiscal year which will apply during 1962-63.

Some 32.7 positions were transferred from the Division of Beaches and Parks, administrative section. From'the old Division of Admin­istration, Department of Natural Resources, 37 positions remained in this new division, and seven positions plus 4.7 man-years of temporary help were added to implement Chapter 2132, Statutes of 1961, which caused the boat registration program to be moved from the Department of Motor Vehicles over to the Division of Small Craft Harbors. The staff for the new director's office was transferred from the former Ad­ministrative Services division of the Department of Natural Resources, and the director and his secretary were financed through savings in the various divisions of the former Department of Natural Resources.

The enabling legislation in the reorganization plan required that no additional costs be incurred by dividing the old departments into newer administrative units. Actually this budget appears to represent a net decrease of approximately $2,000 over prior year costs for this function as it was handled by the Department of Natural Resources.

489

Parks and Recreation Item 193

DIVISION OF BEACHES AND PARKS

The budget proposes a total expenditure program of $5,488,164 which is $770,321, or 12.3 percent, less than is anticipated will be spent in the 1961-62 fiscal year. Some 55.9 new positions net are requested, occa­sioned by the opening of five new parks and three new museums; the further developemnt of seven existing beaches and parks; additional staffing for three existing historical monuments and replacement of certain seasonal lifeguard supervisor positions with a permanent, year round lifeguard supervisor.

The $770,321, or 12.3 percent, decrease does not accurately reflect true decreases within this division. Approximately $332,839, or 43 per­cent, of the $770,321 decrease results from abolition of many administra­tive functions in the administrative section. These functions have been transferred to the newly created Division of Administrative Services in the Department of Parks and Recreation. The Division of Admin­istrative Services is requesting $718,858 for the budget year of which about $552,649 represents increases in this division's level of services resulting from the agency reorganization plan. Most of the $552,649 can properly be added to the budget year request of the Division of Beaches and Parks to enable a comparable evaluation of their request.

Other decreases occur in the operations branch which shows a de­crease of $417,507 over fiscal 1961-62. This is mostly accounted for by an estimated increase of $570,000 in reimbursements from service fees. There is an $18,757 decrease in the net Squaw Valley request in equipment.

It may be said therefore that the actual total expenditures for the beach and park function for the budget year are estimated to increase over the current year by a relatively small amount, but that the in­crease is partially abated by increased fee revenues and the balance diverted to another budget.

The activities of the Division of Beaches and Parks are divided into an administrative program, a technical program, an operations pro­gram and a program dealing exclusively with the administration and operation of Squaw Valley.

Administration

Formerly, the administration section carried on the business manage­ment function of the division in addition to handling the office of the chief and the affairs of the State Park Oommission. With the reorgani­zation of this division resulting from the agency reorganization plan established by' the 1961 legislative session, the division business man­agement function was shifted to the Division of Administration of the new Department of Parks and Recreation. At present, the affairs of the Park Oommission and those activities pertaining to the office of the agency chief remain within the purview of the remaining administra­tion program.

Technical Services

The technical services program has four main functional units. These are the interpretive services unit, the land acquisition section, the de­velopment section, and the appraisal program unit established as a

490

Item. 193 Parks and Recreation

Division of Beaches and Parks-Continued

result of tl1e Department of Finance management :survey number 906.1. which recommended, among other things, that the division's appraisal work be done to a greater extent by state rather than private ap­praisers.

Salaries and wages in this program area have been held to the former year level. Overall increases in the dollar figure for this category are the result of merit salary adjustments.

Operating expense and equipment budgets have both shown reduc­tion over prior year expenditures. However, the salary increase has largely offset these reductions.

Operations

For purposes of administration and operation the State is divided into six districts each of which operates under the direction of a dis­trict headquarters. The district supervisor is directly responsible for the maintenance and operation of all beach, park and historical monu­ment :facilities located within the district, in addition to maintaining close supervision over all staffing and personnel functions. The state headquarters operations branch controls these functions statewide .

.All new positions requested by the division fall within the purview qf the operations branch. Positions proposed for opening and operating new and enlarged. facilities are as follows: San Elijo Beach State Park:

1 state park ranger III 1 state park ranger II 2 state park ranger I

16 man-months seasonal lifeguard

Hendy Woods State Park: 1 state park ranger III 1 state park ranger I

Julia Pfieffer Burns State Park: 1 state park ranger I

Butano State Park: 1 state park ranger I

Alameda County Beaches State Park: 1 state park ranger II 1 state park attendant

Marshall Gold Discovery Museum: 1 historic guide

~orro Bay Museum: 1 state park naturalist II

Donner Memorial Museum: 1 historic guide

5 state park attendant 1 junior intermediate stenographer

24 man-months seasonal park aid

2 state park attendant 4 man-months seasonal aid

1 state park attendant

8 man-months of seasonal park aid

6 man-months seasonal park aid

1 janitor

6 man-months seasonal park aid

.At this point it is well to consider the division's staffing procedure~ .At present it is difficult to determine the criteria under which staffing is accomplished. There appears to be no ratio eS.tablished giving the staffing requirement necessary per camp site unit, per combination huilding, or per user day~ In'previous years we have commented upon this. I~ our analysis of the 1961-62 fiscal year budget, we recommended

Parks and Recreation Item 193

Division of Beaches and Parks-Continued

establishment of one assistant administrative analyst whose function was to be:

1. Collection of information necessary to establishment of division wide policies.

2. Preparation of policy manuals governing administration and oper­ation of the park system.

3. Supervision of distribution and up-dating of the policy manuals. 4. Undertaking of administrative surveys related to development of

operational and manpower requirements.

For a number of reasons, primarily the agency reorganization pro­gram, this recommended position, approved and established by the Legislature, has not been activated and filled. There is a division wide need for the services of thi~ office which has been demonstrated in several ways to representatives of this office on recent field trips.

Field level paper work problems, if left to continue accumUlating in the present fashion, can only cause either a general slowdown of actual beach and park operations while personnel devote more and more time to filling out numerous forms, or result in marked increases in staffing for the sole purpose of accomplishing the paper work. We strongly recommend that the analyst position be activated promptly and that its function be given a high administrative priority.

It is our estimate that the new positions requested in this budget are justified in terms of the available criteria for determining staffing re­quirements. We believe that theYTepresent minimal enhancement of the staff in the division. Since there exists no ratio formula for exactly determining the necessary increases to match the expansion of facili­ties, we recommend approval of these positions with the proviso that early efforts be made to develop a practical, realistic staffing ratio guide.

No new equipment purchases are contemplated. All equipment re­quests are intended for replacement only.

SQUAW VALLEY: For operation of the Squaw Valley facilities, $198,902 is budgeted

for wages and salaries and $167,065 for operating expenses. Some $104,125 is anticipated in reimbursements leaving a net cost of this operation amounting to $261,842.

Four new positions are proposed compensated for by deletion of 48 man-months of seasonal help. The new positions are for the same functions covered by the seasonal help.

It is estimated that $100,000 will be returned in reimbursements from the Squaw Valley concessions in the budget year. This is the same amount as is budgeted for the current year. It appears improb­able that $100,000 will accrue from the concessions this year. And unless appropriate actions are taken immediately the expected reim­bursements will probably not be forthcoming in the budget year. There are three main concessionaires in the valley: The Squaw Valley De­velopment Company (under the management of A. Cushing), the Squaw Valley Improvement Company (Newsom and Pelosi), and the

492

Item 193 Parks and Recreation

Division of Beaches and Parks-Continued

Union Oil Company which operates the only service station in the valley proper and for which an annual rent of $1,800 is charged. As of January 11, 1962 the Cushing operation was $36,258.77 in arrears with some of the billing invoices dating as far back as June 30, 1960. The Newsom and Pelosi operation as of January 10, 1962 was $13,-221.07 in arrears with certain of the billing invoices in this case dating back to January, 1961. No satisfactory reason appears in evidence to explain this condition, although most of it seems to stem from a failure on the part of both the State and the private operators to reach agree­ment on just exactly what conditions govern the various operating concession contracts.

Further, concession :fees are normally computed on a fixed amount plus a stated percentage of the gross receipts. To the best of our knowl­edge, the State has never conducted an audit of the Squaw Valley concessionaire's books, a practice that would appear to be a primary consideration.

We recommend that the Department of Finance and the Division of Beaches and Parks begin now and make every effort to clarify the agreements now in existence and establish the relationship between the State and all private concessionaires on a proper business-like basis. We recommend that an audit of the concessionaire's books be conducted immediately and that all fees due to the State and presently outstand­ing be collected forthwith.

In this same light it would be well to review with each of the con­cessionaires the terms and conditions prevailing under the various contracts in order that a clear determination may be made of the responsibilities of each party. At Squaw Valley the public is poorly served for restroom facilities along the foot of the ski runs to the east of the main area. At present the nearest such facilities in this heavily used skier and family area are in the Blythe Arena some distance away. If construction of restroom facilities are the responsibility of the concessionaires, then steps should be taken immediately to procure their compliance with this requirement.

DIVISION OF RECREATION

The $120,848 requested is $136, or 0.1 percent, more than the estimated expenditure for the present fiscal year. A net increase totaling $674 for salaries and wages is offset by a $1,171 decrease in operating ex­penses. The new cost of health insurance causes the overall increase.

We recommend that this division be eliminated in its entirety and those functions which represent legitimate State responsibilities be placed in the Division of Beaches and Parks with a lateral transfer of staff to support the activities of the Recreation Commission and other statutory duties. .

A review of the legislation activating this division shows a total of six primary areas of responsibility, many of them appear to have over­lapping features. These areas are listed below:

1. Assist the Recreation Commission in the performance of that body's duties.

493

Parks and Recreation Item 193

Division of Recreation-Continued

II. Make investigations and reports on facilities and services needed or which exist in public outdoor recreation areas within the State.

III. Give advice to or co-operate with local recreation agencies for development of public outdoor recreation programs.

IV. Make studies, long-range plans and surveys aimed at developing programs necessary to meet recreation needs at local levels.

V. Encourage and render assistance in promotion of training pro­grams for volunteer and professional recreational leaders in co­operation with local agencies.

VI. Assist other state agencies, commissions, boards and officers of the state government in rendering recreational services in con­formity with their respective authorized powers and duties; assist in co-ordination of federal, state and local recreational activities.

In addition to the above duties and responsibilities, the division, mostly through its chief, participates in numerous conferences, com­mittees and study groups all having a general concern with the subject of public outdoor recreation.

In response to its first noted duty, the division spent approximately 115.5 hours during 1961 in assisting the Recreation Oommission. The second through sixth areas of responsibility were discharged by the division by producing a number of reports, investigations and attend­ing conferences and committee meetings. 'rhese occasions were frequent and numerous and produced voluminous documents.

We note, however, that most of the assigned duties are of an ad­visory nature. With the exception of those duties relating directly to the Recreation Oommission, the division's function is a permissive one. That is, they may respond to inquiries and requests for assistance in the field of outdoor recreation, but they are not charged with initiating recreation programs nor fulfilling, on a state level, tasks which more properly belong at the county or city level.

At one time, while the standards were being set and methods for proceeding ascertained, the division was doubtless extremely busy with formulation of operational manuals. But the problems encountered in this field must, of necessity, closely approximate each other so that only an application of known principles or solutions to any given problem is now necessary. Admittedly, each problem must be studied in terms of its own special conditions, but this is a local responsibility, not that of the State. Once the nature of the individual problem is known and described, the division need only make a recommendation based on its past experience with similar circumstances.

Much of the division's experience can be reduced to written materials which can then provide guidelines to localities responding to their own recreation problems. If the question is asked, "How can we, as a small municipality, organize ourselves to meet our local recreation needs f ", the response by the Division of Recreation can only be from their ex­perience with other like-sized communities. This and similar inquiries make up the greater part of the division's work. This work can be

494

Item 193 Parks and Recreation

Division of Recreation-Continued

handled by a small staff and we can find no justification Ior maintain­ing this division as a separate entity when its Iunctions so closely approximate those OI the Division of Beaches and Parks, which handles similar problems in the course of its own duties. In addition, the Divi­sion OI Beaches and Parks has available on its own staff numerous per­sons highly trained in the operation of recreation facilities whose seTV­ices would considerably enhance the value of recommendations made to local recreation agencies because OI their greatly broadened base.

CaliIornia outdoor recreation is to a great extent practiced in and around the State's beach and park system. The State has recognized its responsibility in this area and has provided one of the finest such systems in the world. Each year large sums OI money are expended Ior the purpose OI maintaining, enlarging and staffing this system. We Ieel that the State has adequately Iulfilled its recreational responsibilities in providing this system. Further outdoor recreation efforts should cer­tainly remain the responsibility of local entities, with the State Iurnish­ing general advice, guideline material and inventories OI statewide :fa­cilities. This can be done by a recreation section within the Division OI Beaches and Parks and without the added expense to the State OI supporting a separate agency Ior this purpose.

All Iunctions now carried out by this division can be adequately performed by a special recreation section within Beaches and Parks, including service to the Recreation Commission and the other duties presently required by statute, without maintenance of an expensive separate establishment .• W e, therefore, feel that the best interests of the State would be served by unifying this division with the operation OI the Division of Beaches and Parks, where close supervision could be maintained over recreation operations with a view toward providing a more direct and effective State role in California outdoor recreation.

The Division of Recreation is requesting $120,848 for the budget year. We believe that Iully half OI this figure, $60,424 could be saved by reducing the entire division's staff, equipment and operating ex­penses to a working section within the Division OI Beaches and Parks. We believe that this percentage reduction in the cost of the recreation function could be realized by avoidance of duplication OI overhead costs resulting Irom operation as a separate entity and through econ­omies realized through a more practical and effective program of carry­ing out the State's responsibility in the recreation business.

DIVISION OF SMALL CRAFT HARBORS

The budget proposes an expenditure of $142,107 from the General Fund, which is $63,530, or 80.9 percent more than is estimated will be expended during the 1961-62 fiscal year.

In previous years, the greater part of the boat registration program was periormed by the Department of Motor Vehicles. Chapter 2132, 1961 Session, places the entire registration program in the Division OI Small Craft Harbors. To accomplish this the division will increase the registration clerical staff by five positions and temporary help by 1.3

495

Parks and Recreation Item 194

Division of Small Craft Harbors-Continued

positions at a cost of $36,461 over the estimated 1961-62 registration expenditure.

Total revenue accruing to the General Fund from small craft regis­trations for the period from March 1, 1960, through November 30, 1961, amounts to $1,490,644.

The cost of the registration program as performed by the Department of Motor Vehicles was approximately $200,200 during the 1960-61 fiscal year, and is estimated at $211,817 for fiscal year 1961-62. The proposed expenditure during fiscal year 1962-63 for the same lev~l of service by the Division of Small Craft Harbors is placed at $135,125 for the cler­ical and administrative functions as shown above, and $28,720 from the Division of Administrative Services in the Department of Parks and Recreation for machine precessing functions. The total of the two is $163,845. This represents a decrease from the two-year Motor Vehicles Department average of approximately $42,158, indicating that poten­tially the division can perform this service more economically than by the previous method. Total registration revenue will exceed total regis­tration costs through the 1962-63 fiscal year.

Also included in this budget is an increased expenditure of $13,813 for equipment mostly in the form of accounting machines and appurte­nance which should not recur.

The division's assumption of all phases of the boat registration pro­gram will doubtless entail some initial expenditures which, in succeed­ing years, should not be repeated. The level of staffing appears ade­quate for all anticipated increases in boat registration. The accounting and other business machines requested by the division are estimated to have idle periods between the main registration rush periods. We feel that every effort should be made to schedule machine work to use idle capacity within the other divisions of this agency.

We recommend approval of this item in the reduced amount of $6,396,095.

Department of Parks and Recreation DIVISION OF SMALL CRAFT HARBORS

ITEM 194 of the Budget Bill Budget page 520

FOR SUPPORT OF THE DIVISION OF SMALL CRAFT HARBORS FROM THE SMALL CRAFT HARBORS REVOLVING FUND )Lmount requested _____________________________________________ _ Contribution to state employees' retirement system ________________ _ S tate employees' health and welfare ______________________________ _

~otal ____________________________________________________ _ Estimated to be expended in 1960-61 fiscal year ____________________ _

Increase (15.4 percent) ________________________________________ _

TOTAL RECOMMENDED REDUCTION __________________________ _

496

$371,743 17,776 3,119

$392,638 340,232

$52,406

$24,102

Item 194 Parks and Recreation

Division of Small Craft Harbors-Continued

Summary of Recommended Reductions Budget GeneraZ operations Amount Page Line

Delete 3 boating regulations representatives ______________ $17,877 * 521 29 Delete 5 percent traveling-in-state____________________ 1,980 521 42 Delete 1 junior-intermediate stenographer_______________ 4,245 521 30

* Plus reducing acqulsitlon of furnishings and other equipment proportionately.

ANALYSIS

The budget proposes an expenditure of $392,638, which is a $52,406, or 15.4 percent, increase over the 1961-62 fiscal year. This budget re­flects a total of 13 new positions in the harbors of refuge and boating regulations programs, both of which were expanded as a result of 1961 legislation. .

Chapter 2101, Statutes of 1961, authol'izesthe division to plan, acquire, and build harbors of refuge offering maximum protection with minimum facilities. They may also acquire, develop jetties, breakwaters, dredging, sea walls and piers and communications centers. Prior to implementing this project the division is conducting a planning survey. Seven new positions will be added for the purposes of this study.

In response to Chapter 2088, Statutes of 1961, the division plans to inaugurate a Boating Regulations Program and has requested five boating regulation representatives plus one junior-intermediate stenog­rapher for this purpose. Presently, there is a supervisor and three technician/clerical positions authorized in this function. We recommend deletion of. three of the boating regulations representatives plus the new stenographer position for a salary saving of $32,122 plus a related saving of equipment.

At present the U.S. Coast Guard, the U.S. Coast Guard Auxiliary, the U.S. Power Squadron, the Red Cross, the Boy Scouts and several other organizations offer water safety and boat handling information and instruction. The literature available from these sources on the sub­ject of boating safety, regulations and operating techniques is both voluminous and complete. To add another office to these agencies seems superfluous.

A large item in the Boating Regulation Program is a co-ordinating function by which it is meant that the division intends to provide a clearinghouse of information for the boating pUblic. We feel that the present staff, plus no more than two additional representatives should be fully adequate.

We also recommend a five percent reduction in the in-state travel amount budgeted for the 1962-63 fiscal year. We have observed a grow­ing tendency in the division to provide unnecessary staff attendance at commission meetings. Representatives of the division are frequently present in person when their contribution could, with equal effective­ness, have been made by means of a well organized memorandum. A case in point was the June, 1961, commission meeting in Redondo Beach when at least eight out of a total division staff of approximately 23 were present for the two-day function.

497